Create Pedestrian Focused Overlay Zones
Brett DuBois (author), Charlie Cowell & Jonathan Rosenbloom (editors)INTRODUCTION
If given a choice, most people will not choose to walk unless it is a safe, useful, and comfortable choice.[1] To more easily convert and maintain areas that encourage walking, many local governments use overlay zones targeted at increasing pedestrian mobility.[2] The additional zoning regulations that are part of these overlay districts help facilitate walking “where special approaches to development may be required.”[3] What makes overlay zones effective in helping pedestrian mobility is they can include various methods to promote walkability depending on local characteristics and community. A local government can include any of the regulations throughout the pedestrian mobility chapter in an overlay zone to more easily apply regulations to existing areas (to view all briefs in the pedestrian mobility subchapter see Pedestrian Mobility).
There are two primary options for structuring pedestrian overlay zones. A community may decide to adopt an overlay zone for a specific area,[4] or a community may make a general pedestrian overlay and apply it to areas as needed.[5] Many of the more general overlays use similar language that focus on building setbacks, building design, and parking locations.[6] These types of regulations help maintain the spatial definition of walkable areas; ensuring pedestrians feel comfortable walking there.[7]
Overlays targeted at specific areas can help ensure that future developments not only maintain and extend the walkable characteristics that exist in an area, but also that they maintain a similar aesthetic.[8] This can be achieved through specific requirements that regulate the public side of a building to match the aesthetic design of the area as a whole, or through including pedestrian level design features (see, for example, Limit Garage Walls Facing Street).[9] The specific regulations that are part of an overlay district may differ by jurisdiction, but should consider concepts from all briefs in the Pedestrian Mobility subchapter.
EFFECTS
By changing development regulations to focus on pedestrians, local governments can increase the number of people walking in the area.[10] Increasing the walkability of a jurisdiction improves three key areas: the economy, public health, and the environment.[11] Improving walkability benefits the economy because homes in walkable areas are more valuable.[12] Even small improvements can have large impacts that add thousands to the value of a home.[13] Increased walkability also benefits the average citizen, as a large portion of income is often spent on vehicles.[14] By increasing the walkability of the area, people can become less reliant on cars and cut down on the costs associated with them.[15]
The second benefit that stems from improved walkability is public health. Increased physical activity is correlated with areas that have high amounts of connectivity.[16] This correlation is important for local governments, as making the area more walkable is likely to decrease the local obesity rate.[17] Increased physical activity encouraged by a walkable area can help prevent long-term diseases such as heart disease and high blood pressure.[18] More walkable communities can also decrease the likelihood of car related injuries because they are often designed around pedestrians as opposed to cars.[19]
The third benefit derived from increasing walkability is reducing the negative impacts humans have on the environment. For most people, the largest contributor to their individual carbon footprint is driving.[20] By making more walkable communities and getting people to walk instead of drive, local governments can greatly reduce their carbon footprint.[21]
EXAMPLES
Tampa, FL
The South Howard area in Tampa is well known for having several pedestrian-oriented features that create a walkable environment.[22] To maintain and promote the pedestrian focus of this area, the City created a specific overlay district for the South Howard commercial district to include targeted regulations.[23] The ordinance outlines design requirements that any developer working in the area must comply with.[24]
This first pedestrian concern addressed by the ordinance is to ensure the comfort of pedestrians through regulations for general building and parking designs.[25] An example design requirement is providing shelter or shade for pedestrians along public right-of-ways which must be achieved through the use of shade tress or awnings.[26] The code also requires that appropriate pedestrian amenities such as benches need to be provided in some situations.[27] Pedestrian comfort is also achieved through regulations managing the spatial structure of the area. Regulations such as setback maximums and minimums as well as controlling where outdoor courtyards or cafés can be placed help ensure consistent space along walkways.[28] Consistency in the spatial structure of the area is further achieved through requirements that parking be located on the side or rear of the building.[29]
The second pedestrian concern addressed through the ordinance is to ensure the area maintains an aesthetically pleasing design. This is achieved by adding requirements to address walls facing pedestrian right-of-ways, including that large wall planes be broken up using architectural features or windows in order to ensure a more friendly view for pedestrians.[30] Additional aesthetic requirements include prohibiting chain link fences visible from South Howard Avenue, ensuring any exterior lights compliment the overall design of the building,[31] and requiring that any exterior garbage containers be shielded from sight by a material that compliments the design of the building as a whole.[32]
To view the provision, see Tampa, FL, Code of Ordinances § 27-236 (2017).
Charlotte, NC
As opposed to creating an overlay district specific to a pedestrian area, Charlotte instead created a generic pedestrian overlay district, which the City can apply to desired areas.[33] This ordinance provides development standards that take precedence over the underlying zoning district standards, allowing the city to provide additional pedestrian centered regulations to areas that need it.[34] The ordinance references a streetscape plan that is approved by the city council to determine specific regulations.[35]
Specific pedestrian focused regulations include several elements. The City begins by requiring a minimum setback distance provided by the streetscape plan.[36] The ordinance also ensures pedestrians will have ample space by preventing doorways and balconies from significantly crossing the setback line.[37] In addition, larger lots are required to provide urban open space that is available to members of the development.[38]
The regulations also include requirements aimed at ensuring the pedestrian areas have appropriate aesthetics. The City allows for developments to include fences, but requires that they remain behind the sidewalks and cannot be above 3 feet in height.[39] The aesthetics of the area are also maintained through screening requirements.[40] The ordinance mandates that large parking lots be screened from pedestrians with landscaping or a masonry wall.[41] Similar to parking lots, the code requires that a six-foot tall masonry wall with a gate must screen dumpsters.[42]
To view the provision, see Charlotte, NC, Code of Ordinance § 10.812 (2014).
ADDITIONAL EXAMPLES
Kansas City, MO, Zoning and Development Code § 88-230 (2016) (creating a pedestrian-oriented overlay which regulates building placement, ground-floor transparency, entrances, parking, driveways, signs and commercial spaces within the area it is applied to).
Little Rock, AR, Code of Ordinances § 36-389 (2007) (creating an overlay zone specifically for the midtown area which regulates things such as building form and design, required setbacks, driveways, sidewalks, lighting and landscaping among others).
Missoula, MT, Code of Ordinances § 20.25.020 (2009) (creating a narrow pedestrian overlay regulating building placement, ground floor appearances, entrances, and commercial spaces).
ADDITIONAL RESOURCES
Jeff Speck, Walkable City Rules 101 Steps to Making Better Places (2018).
Dep’t of Transp., The National Bicycling and Walking Study: 15-Year Status Report 2-3 (May 2010), https://perma.cc/EG2Z-QH8R.
Fred Kent, Streets are People Places, Project for Public Space (May 31, 2005), https://perma.cc/M6SG-3JLC.
CITATIONS
[1] Jeff Speck, Walkable City Rules 101 Steps to Making Better Place, 197 (2018).
[2] See Charlotte, NC, Code of Ordinance § 10.812 (2014); Kansas City, MO, Zoning and Development Code § 88-205-01 (2016); Tampa, FL, Code of Ordinances § 27-236 (2017);
[3] See Kansas City, MO, Zoning and Development Code § 88-205-01.
[4] See Tampa, FL, Code of Ordinances § 27-236(a) (2017).
[5] Charlotte, NC, Code of Ordinances § 10.802 (2014).
[6] See Kansas City, MO, Zoning and Development Code § 88-205-01; Missoula, MT, Code of Ordinances § 20.25.020 (2009).
[7] Speck, supra note 1, at 197.
[8] See Tampa, FL, Code of Ordinances § 27-236.
[9] Id.
[10] See Fred Kent, Streets are People Places, Project for Public Space (May 31, 2005), https://perma.cc/M6SG-3JLC.
[11] Speck, supra note 1, at 1.
[12] Mark Jones, Sidewalks Offer City a Variety of Benefits (June 8, 2008), https://perma.cc/VD95-J72K.
[13] Joe Cortright, Walking the Walk How Walkability Raises Home Values in U.S. Cities, CEOs for Cities, 21 (August 2009), https://perma.cc/DS8A-NCHE.
[14] Speck, supra note 1, at 3.
[15] See Kent, supra note 10, Speck, supra note 1, at 3.
[16] Dep’t of Transp., The National Bicycling and Walking Study: 15-Year Status Report 2-3 (May 2010), https://perma.cc/EG2Z-QH8R.
[17] Speck, supra note 1, at 4.
[18] Ctr. For American Progess, It’s Easy Being Green: Walking vs. Driving Is a No-Brainer (July 2, 2008), https://perma.cc/ULX2-5W6G.
[19] Speck, supra note 1, at 5.
[20] Speck, supra note 1, at 7.
[21] Ctr. For American Progress supra, note 10.
[22] Tampa, FL, Code of Ordinances § 27-236(a).
[23] Id. at § 27-236(c).
[24] Id. at § 27-236(h-m).
[25] Id. at § 27-236(h, i).
[26] Id. at § 27-236(h)(1).
[27] Id.
[28] Id. at § 27-236(h)(4-6).
[29] Id. at § 27-236(i)(1).
[30] Id. at § 27-236(h)(2).
[31] Id. at § 27-236(b)(8-9).
[32] Id. at § 27-236(b)(10).
[33] Charlotte, NC, Code of Ordinances § 10.802.
[34] Id. at § 10.812.
[35] Id. at tbl. 10.812(2).
[36] Id.
[37] Id.
[38] Id. at § 10.812(7).
[39] Id. at tbl. 10.812(2).
[40] Id. at § 10.812(4).
[41] Id. at § 10.812(4)(a).
[42] Id. at § 10.812(4)(b).